Prosecutorial Discretion Memo

8/6/2019 Prosecutorial Discretion Memo

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Exercising Prosecutorial Discretion Consistent with the Priorities o fthe Agency for the .

Apprehension, Detention, andRemoval o fAliens

The following memoranda related to prosecutorial discretion are rescinded:

• Johnny N; Williams, Executive Associate Commissioner (EAC) for Field Operations,

Supplemental Guidance Regarding Discretionary Referrals for Special Registration

(October 31, 2002); and

• Johnny N. Williams, EAC for Field Operations, Supplemental NSEERS Guidance for

Call-In Registrants (January 8,2003).

Background

One of ICE's central responsibilities is to enforce t h ~ nation's civil immigration laws in

coordination with U.S. Customs and Border Protection (CBP) and U.S. Citizenship and

. Immigration Services (USCIS). ICE, however, has limited resources to remove those

illegally in the United States. ICE must prioritize the use of its enforcement personnel,

detention space, and removal assets to ensure that the aliens it removes represent, as much asreasonably possible, the agency's enforcement priorities, namely the promotion of national

security, border security, public safety, and the integrity ofthe immigration system. These

priorities are outlined in the ICE Civil Immigration Enforcement Priorities memorandum of

March 2,2011, which this memonmdum is intended to support.

Because the agency is confronted with more administrative violations than its resources can

address, the agency must regularly exercise "prosecutorial discretion" if it is to prioritize its

efforts. In basic terms, prosecutorial discretion is the authority of an agency charged with

enforcing a law to decide to what degree to enforce the law against a particular individual. ICE,

like anyother law enforcement agency, has prosecutorial discretion and may exercise"it in the

ordinary course of enforcement1.When ICE favorably exercises prosecutorial discretion, itessentially decides not to assert the full scope of the enforcement authority available to the agency

in a given case.

In the civil immigration enforcement context, the term "prosecutorial discretion" applies to a

broad range of discretionary enforcement decisions, including but not limited to the

following:

• deciding to issue or cancel a notice of detainer;

• deciding to issue, reissue, serve, file, or cancel a Notice to Appear (NTA);

• focusing enforcement resources on particular administrative violations or conduct;

• deciding whom to stop, question, or arrest for an administrative violation;

• deciding whom to detain or to release on bond, supervision, personal recognizance, or

other condition;

• seeking expedited removal or other forms of removal by means other thana formal

removal proceeding in immigration court;

I The Meissner memorandum' s standard for prosecutorial discretion in a given case turned principally on whether a

substarItial federal interest was present. Under this memorandum, the starIdard is principally one of pursuing those

Cases that meet the agency's priorities for federal immigration enforcement generally.

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Exercising Prosecutorial Discretion Consistent with the Priorities o f the Agency for the

Apprehension, Detention, andRemoval ofAliens

• settling or dismissing a proceeding;

• granting deferred action, granting parole,or staying a final order of removal;

• agreeing to voluntary departure, the withdrawal of an application for admission, or

other action in lieu of obtaining a formal order of removal;

• pursuing an appeal;• executing a removal order; and

• responding to or joining in a motion to reopen removal proceedings and to consider

joining in a motion to grant relief or a benefit.

Authorized ICE Personnel

Prosecutorial discretion in civil immigration enforcement matters is held by the Director2

and

may be exercised, with appropriate supervisory oversight, by the following ICE employees

according to their specific responsibilities and authorities:

• officers, agents, and their respective supervisors within Enforcement and RemovalOperations (ERO) who have authority to institute immigration removal proceedings or to

otherwise engage in civil immigration enforcement;

• officers, special agents, and their respective supervisors within Homeland Sect¢.ty

Investigations (HSI) who have authority to institute immigration removal proceedings or

to otherwise engage in civil immigration enforcement;

• attorneys and their respective supervisors within the Office of the Principal Legal

Advisor (OPLA) who have authority to represent ICE in immigration removal

proceedings before the Executive Office for Immigration Review (EOIR); and

• the Director, the Deputy Director, and their senior staff.

ICE attorneys may exercise prosecutorial discretion in any immigration removal proceeding

before EOIR, on referral of the case from EOIR to the Attorney General, or during the pendency

,o fan appeal to the federal courts, including a proceeding proposed or initiated by CBP or

USCIS. If an ICE attorney decides to exercise prosecutorial discretion to dismiss, suspend, or

close a particular case or matter, the attorney should notify the relevant ERO, HSI, CBP, or

USCIS charging official about the decision. In the event there is a dispute between the charging

official and the ICE attorney regarding the attorney's decision to exercise prosecutorial

diScretion, the ICE Chief Counsel should attempt to resolve the dispute with the local supervisors

of the charging officiaL If local resolution is not possible, the matter should be elevated to the

Deputy Director of ICE for resolution .

2 Delegation of Authority to the Assistant Secretary, Immigration and Customs Enforcement, Delegation No. 7030.2

(November 13, 2004), delegating among other authorities, the authority to exercise prosecutorial discretion in

immigration enforcement matters (as defined in 8 U.S.C. § 1 10 1 a)(17». .

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Exercising Prosecutorial Discretion Consistent with the Priorities of the Agency for the

Apprehension, Detention, and Removal ofAliens

Factors to Consider When Exercising Prosecutorial Discretion

When weighing whether an exercise ofprosecutorial discretion may be warranted for a given

. alien, ICE officers, agents,and attorneys should consider all relevant factors, including, but not

limited to

• the agency's civil immigration enforcement priorities;

• the person's length ofpresence in the United States, with particular consideration given

to presence while in lawful status;

• the circumstances ofthe person's arrival in the United States and the manner ofhis or her

entry,particularly if the alien came to the United States as a young child;

• the person's pursuit of education in the United States, with particular consideration given

to those who have graduated from a U.S. high school or have successfully pursued or are

pursuing a college or advanced degrees at a legitimate institution ofhigher education in

the United States;

• whether the person, or the person's immediate relative,has served in the U.S. military,reserves, or national guard, with particular consideration given to those who served in

combat;

• the person's criminal history, including arrests, prior convictions, or outstanding arrest

warrants;

• the person's immigration history, including any prior removal, outstanding order of

removal, prior denial of status, or evidence of fraud;

• whether the person poses a national security or public safety concern;

• the person's ties and contributions to the community, including family relationships;

• the person's ties to the home country and c o n d i t i o n ~ in the country;

• the person's age, with particular consideration given to minorsandthe

elderly;• whether the person has a U.S. citizen or permanent resident spouse, child, or parent;

• whether the person is the primary caretaker of a person with a mental or physical

disability, minor, or seriously ill relative; ;

• whether the person or the person's spouse is pregnant or nursing;

• whether the person or the person's spouse suffers from severe mental or physical illness;

• whether the person's nationality renders removal unlikely;

• Whether the person is likely to be granted temporary or permanent status or other relief

from removal, including as a relative of a U.S. citizen or permanent resident;

• whether the person is likely to be granted temporary or permanent status or other relief

from removal, including as an asylum seeker, or a victim of domestic violence, human

trafficking, or other crime; .and .

• whether the person is currently cooperating or has cooperated with federal, state or local

law enforcement authorities, such as ICE, the U.S Attorneys or Department of Justice, the

Department ofLabor, or National Labor Relations Board, among others.

This list is not exhaustive and no one factor is.determinative. ICE officers, agents, and attorneys

should always consider prosecutorial discretion on a case-by-case basis. The decisions should be

based on the totality of the circumstances, with the goal of conforming to ICE's enforcement

priorities.

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Exercising Prosecutorial Discretion Consistent with the Priorities oftheAgency for the

Apprehension, Detention, and Removal ofAliens

That said, there are certain classes of individuals that wat,Tant particular care. As was stated in

the Meissner memorandum on Exercising Prosecutorial Discretion, there are factors that can help

ICE officers, agents, and attorneys identify these cases so thatthey can be reviewed as early as

possible in the process.

The following positive factors should prompt particular care and consideration:

• veterans and members ofthe U.S. armed forces;

• long-time lawful permanent residents;

•. minors and elderly individuals;

• individuals present in the United States since childhood;

• pregnant or nursing women;

• victims of domestic violence; trafficking, or other serious crimes;

• individuals who suffer from a serious mental or physical disability; and

• individuals with serious health conditions.

In exercising prosecutorial discretion in furtherance ofICE's enforcement priorities, the

following negative factors should also prompt particular care and consideration by ICE officers,

agents, and attorneys:

• individuals who pose a clear risk to national security;

• serious felons, repeat offenders, or individuals with a lengthy criminal record of any kind;

• known gang members or other individuals who pose a clear danger to public safety; and

• individuals with an egregious record of immigration violations, including those with a

record of illegal re-entry and those who have engaged in immigration fraud.

Timing

While ICE may exercise prosecutorial discretion at any stage of an enforcement proceeding, it is

generally preferable to exercise such discretion as early in the case or proceeding as possible in

order to preserve government resources that would otherwise be expended in pursuing the

enforcement proceeding. As was more extensively elaborated on in the Howard Memorandum

on Prosecutorial Discretion, the universe of opportunities to exercise prosecutorial discretion is

large. It may be exercised at any stage of the proceedings. I t is also preferable for ICE officers,

agents, and attorneys to consider prosecutorial discretion in cases without waiting for an alien or

alien's advocate or counsel to request a favorable exercise ofdiscretion. Although affirmative

requests from an alien or his or her representative may prompt an evaluation of whether afavorable exercise of discretion is appropriate in a given case, ICE officers, agents, and attorneys

should examine each such case independently to determine whether a favorable exercise of

discretion may be appropriate.

In cases where, based upon an officer's, agent's, or attorney's initial exaniination, an exercise of

prosecutorial discretion may be warranted but additional information would assist in reaching a

final decision, additional information may be requested from the alien or his or her

representative. Such requests should be made in conformity with ethics rules governing

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Exercising Prosecutorial Discretion Consistent with the Priorities ofthe Agency for the

Apprehension, Detention, andRemoval ofAliens

communication with represented individuals3

and should always emphasize that, while ICE may

be considering whether to exercise discretion in the case, there is no guarantee that the agency

will ultimately exercise discretion favorably. Responsive information from the alien or his or her

representative need not take any particular form and can range from a simple letter or e-mail

message to a memorandum with supporting attachments.

Disclaimer

As there is no right to the favorable exercise ofdiscretion by the agency, nothing in this

memorandum should be construed to prohibit the apprehension, detention, or removal of any

alien unlawfully in the United States or to limit the legal authority of ICE or any of its personnel

to enforce federal immigration law. Similarly, this memorandum, which may be modified,

superseded, or rescinded at any time without notice, is not intended to, does not, and may not be

relied upon to create any right or benefit, substantive or procedural, enforceable at law by any

party in any administrative, civil, or criminal matter.

3 For questions concerning such rules, officers or agents should consult their local Office ofChiefCounsel.

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Documents

Prosecutorial Discretion Memo